Headland & Foreshore Redevelopment: Design Strategy Addendum October 2018

Mumbles Headland & Foreshore Redevelopment: Design Strategy Addendum

Site Location

Geographically, the site presents a headland and coastal strip at the southern point of Bay. The site has a backdrop of quarried rockface. It is located in close proximity to both the Blackpill and Sites of Special Scientific Interest (SSSI) and the Mumbles Hill Local Nature Reserve.

The site is partly located within a nationally recognised protected landscape, the Gower Area of Outstanding Natural Beauty (AONB). It was designated for its landscape setting in 1956 and the Pier hotel was included as part of the designated area. Under the Countryside Act 1968 AONB’s were given the same landscape status as National Parks.

Part of the site is located within zone C2, as defined by the development advice maps, referred to under TAN15 Development and Flood Risk (July 2004).

Full consideration of the potential impact on biodiversity and other interests from the development proposals will be required.

The site occupies a narrow strip of land with a level ribbon average width approximately 13m. It lies between the public car park at Knab Rock to the west and the beach at Mumbles Head. It is bounded on the landward (south) side by a rock face which rises steeply to approx 16m in height the sea wall bounds the northern edge although the site boundary extends 15 - 30m beyond this into tidal land. The site encloses around 420m2 of sand and shingle beach to the east and a part of the rock face of Mumbles Head. At the top of the headland the site incorporates a substantial area of land which includes the ‘Big Apple’ car park.

Historical Context

The Mumbles Railway had begun as a mineral line in 1804 to transport limestone from the quarries at Mumbles to Swansea and to facilitate the transfer of cargoes, which big ships unable to dock at Swansea harbour at low tide, would offload at Mumbles. The potential for carrying passengers was soon seen and a horse-drawn passenger service was started on 25th March, 1807, making it the first passenger railway service in the world. Following the development of the rail service, Mumbles became a popular tourist destination.

Mumbles Head was blown up by quarrymen in 1838.

Designed by W. Sutcliffe Marsh and promoted by John Jones Jenkins of the Rhondda and Railway, the pier opened on 10 May 1898 at a cost of £10,000. It was the western terminus for the world's first passenger carrying railway, the Swansea and Mumbles Railway; and a major terminal for the White Funnel paddle steamers unloading tourists from routes along the River Severn and Bristol Channel.

The actual terminus for the train was along the coastal strip where the current car park stands. Early attempts to extend the railway to the headland failed as tracks were washed away by the sea. It is worth noting that land along the coastal strip was reclaimed and built up to current levels during the 1890s to make place for the train.

An RNLI lifeboat slipway was added to the pier in the summer of 1916 and a boathouse was finally built on it in 1922. Ancillary to the pier, a hotel,‘The Pier Hotel’, was built on the pier forecourt at the same time. It was leased by AMECO in 1934 and has seen a number of incarnations over the years.

The Amusement Equipment Company (AMECO) gained a licence to operate the pier from 1 October 1937. In keeping with most other southern piers, was sectioned as a defence measure in 1940 and not returned to private use for nearly a decade. Shortly after the reopening, the Swansea to Mumbles railway was closed and AMECO acquired the freehold site ownership in 1957 extensively reconstructing the facility and adding a landing jetty. The present entrance to the Pier is an addition replacing the original turnstile.

A new arcade was built on the pier's frontage in 1966. AMECO spent between £25,000 and £30,000 per annum on the maintenance and replacement of the steelwork between 1975 and 1985.

In 2012, a new lifeboat station and RNLI gift shop was built at the end of the pier and fishing platforms added. A major refurbishment of the pier is currently underway which will involve the entire replacement of the steel lattice structure and decking above the cast iron piles.

The pier is 255m long built on a sub-structure of cast-iron piles below a deck carried on steel framed lattice girders. The deck is laid with planks and has a cast iron parapet with open foliage panels. On each side are 3 refuges, of which the larger pair at the seaward end originally housed pavilions. At the seaward end the pier broadens (originally with a bandstand in the centre) with benches around the edges the backs of which have cast iron intertwined dolphins.

The Pier, including the Lifeboat Station and Slipway, was Grade II listed on 31st July 1991. The listing was amended on the 29th October 1999 when the Public Conveniences located near the entrance to the Pier also acquired the same listed status

Mumbles Pier and the foreshore have been owned by Amusement Equipment Company Limited (AMECO) for over 70 years. AMECO has demonstrated a continuing commitment to its operation and wishes to rebuild and restore this iconic feature of Swansea and Gower so that it can be enjoyed by future generations for years to come. Alongside the works to the Pier, a redevelopment scheme for the enhancement of the area of Foreshore adjacent to the Pier has also been prepared.

Physical Context

The total area of site within the ownership boundary of AMECO covers around 3.4ha (8.4 acres) including the listed pier structure which projects into the sea at Mumbles Head. The application site boundary encloses an area of 3.03ha (7.5 acres) this excludes the pier and the site of the former lifeboat cottage which has an extant planning permission to refurbish, extend and convert for restaurant use.

The site is linear leading from Knab Rock to the tip of Mumbles Head and is bounded by the steep, rocky coastal slope to the south and the sea wall to the north. The approach and coastal strip are dominated by the access road and public car park along its entire length, with only the cluster of the inshore lifeboat station, former lifeboat cottage and rowing club building adding any interest along the route to the pier. The pedestrian route from Knab Rock is tight, exposed and unsheltered contributing very little to the visitor experience.

The site commands outstanding views across Swansea Bay towards the City and across the Bristol Channel to the Devon Coastline.

The historic pier structure provides the sense of arrival at an important visitor destination, however with no attraction on the pier itself and with sections closed due to its current poor state of repair despite a rigorous annual maintenance regime the destination is in decline and lacks the quality which the visitor might expect.

In addition to the Pier, the site currently accommodates a popular family amusement centre, cafes, bars, the former nightclub building is now closed to the public. There is direct access via steps down to Mumbles Beach with an additional public car park located on the headland above the coastal slope.

The Pier hosts the former Offshore Lifeboat Station, itself a listed structure, ownership of which was passed to the Pier owners when the RNLI constructed a new offshore Lifeboat station to house their new vessel. Alternative uses are being considered for the existing lifeboat house including a possible landing stage for boat trips and pleasure craft, these however do not form part of this application

context analysis - the broader view

When seen from a distance the Mumbles, in common with most maritime landscapes, is characterised by colourful terraced properties stepping up the hillside presenting a layered form reflecting the profile of the land on which they sit. Viewed from across Swansea Bay the Mumbles headland forms a strong horizontal feature emphasising the expanse of the bay and the sky. The distant North Devon coast provides a second horizontal feature providing a sense of scale and distance. context analysis - the Mumbles headland

As with the broader view there are a number of strong horizontal lines that characterise the Mumbles when seen from the sea. The seawall provides a strong horizontal emphasis where the land meets the sea and the pier provides a horizontal visual and physical extension to the headland. The and the inshore lifeboat station provide vertical counterpoints to the dominant horizontals.

context analysis - built form When viewed as a whole the architecture of the part of Mumbles adjoining the proposed development site is characterised by terraces of buildings running parallel to the seawall forming a composition with a strong horizontal emphasis. The individual buildings that make up the terraces have their own character and features this is very much ‘ensemble architecture’. In considering what defines the character of the built form of Mumbles in terms of materials, scale, colour and features it is clear that there are two distinct parts to the habitation - the ‘historic village’ and the ‘seafront’. The character of these two areas and their relevance to the proposed development is described in the following pages. context analysis - ‘the historic village’ built form The ‘true’ character of the village of Mumbles is to be found in the buildings in the small streets running back from the seafront. The streets often run up the hill from the sea and are usually narrow and much more human scale than the roads along the seafront. The streets are often steep with high boundary walls, small scale vegetation and no pavement which enhances to the sense of enclosure, interest and human scale.

Many of the buildings in this part of Mumbles were originally fisherman’s or artisan’s cottages and are characterised by a smaller scale than the seafront buildings - usually no more than two storeys - with picturesque brightly coloured render walls, narrow frontages, simple openings and pitched slate or tile roofs with chimneys.

Geographically the context of the buildings along the seafront is more relevant to the design of the proposed development. The buildings overlooking the seafront present present a series of gables towards the sea articulating the roofscape. There is a richness and tactile quality to the materials used, a variety of form and colour and a simple and honest treatment of openings. context analysis - ‘the seafront’ built form An analysis of the buildings along the main road leading to the proposed development site shows that this part of Mumbles has a quite different character from the historical village centre. There are a number of key characteristics of the road frontage buildings which can inform the design development of the new foreshore development. These key characteristics are shown on the analysis photographs and are summarised below.

The intention is that these key characteristics with the layered backdrop of the village climbing the hill, guide the form and composition of the new buildings and provide a basis for the selection of the materials palette.

It is not intended to slavishly follow the design of the existing buildings but rather to ensure that the new buildings respect the existing built environment and enhance the architectural quality of both the village of Mumbles and Mumbles Head, but to use this context analysis and the basis for a contemporary interpretation of the ‘ensemble’ architectural character of the Village.

• dominant gabled roofs • a layering of built form against the backdrop of the rock slope and Mumbles Head • vertical division/features articulate and enliven composition • articulation of roof forms and their use to provide ‘loft’ accommodation • use of bays, balconies and projecting windows to punctuate the elevation • dominant materials - render, stone, brick, glass, slate and tile • most buildings are 3 and 4 storeys in height • use of colour to provide variety and visual stimulation

Context: Outline Approval The Outline approval gained in December 2011 sets out the parameters and agreed principals for the development including use, layout, scale and mass. It is against these parameters which these Reserved Matters proposals need to be tested. This approval was varied by a Section 73 Application in March 2108.

The design of these Reserved Matters proposals has evolved with extensive dialogue with City & County of Swansea Planning Department. Proposals have been presented to Mumbles Community Council and for review by Design Commission for . Feedback from these discussions have been incorporated into the final designs submitted for approval.

Whilst the retention of existing buildings on the site dictated a different architectural approach to that indicated in the drawings which gained Outline Approval in 2011, in terms of scale and mass they fall within the parameters already agreed by that Outline Approval.

A number of Verified View Points were agreed with CCS to test proposals for the Outline Planning Application and these have been recreated in order to compare the visual impact of these Reserved Matters proposals. These views compare the undeveloped site with proposals which gained Outline Approval alongside the current Application. In addition to these, site elevations have been generated which illustrate that the current proposals are reduced in scale from those which gained approval in 2011.

The retention of existing buildings on the headland means that the overall scale of development is reduced from that presented at outline stage. Generally, the development is lower and more articulated than previous proposals and more sensitive to its surroundings.

Public Realm & Landscaping Aside from the environmental and visual sensitivities of the site, the key consideration behind the planning of the development has been the access and public realm improvements, ensuring an animated route and active public realm at the pier entrance with the creation of quality space which provides comfort, shelter and exploits the magnificent views.

The linearity of the site with its long narrow approach from Knab Rock to the Pier, currently provides little or no shelter along its route, the narrow pedestrian walkway shares the same surface as vehicles with only a white line separating the two. There is little opportunity for shelter along its 400m length, with no activity or interest along the route other than the Inshore Lifeboat station with its small visitor centre. The route terminates at the Pier which provides the destination point at the end of the bay.

Upon arrival at the pier, an extended public realm surrounds the existing buildings providing opportunity for outdoor arts, performance and family entertainment as well as outdoor dining and amusements. Improved access down to Mumbles Beach is also proposed with new steps suitable for ambulant disabled and handrails provided.

Pedestrian access to the site is currently dominated by roadway and car parking, in addition to the obvious safety issues associated with the current cramped solution, there is little shelter or protection from the elements and no points of interest to engage the visitor along the route.

The former Lifeboat Cottage has already gained Planning permission for conversion to a restaurant and this, along with the Inshore Lifeboat station with its visitor facility and the Rowing Club form a hub at roughly the mid-point of the route from Knab Rock to the Pier.

Surfacing is of poor quality and is there as a practical surface for vehicles rather than an attractive surface which contributes to and enhances what is a popular visitor destination. The proposal is to create a new promenade/boardwalk outside the line of the current sea wall with mini piers, shelters, kiosks, public art and landscaping along its length.

Public car parking will be retained on site, however it is proposed to break this expanse up with landscaping, providing shelter and visual interest along the route. Frequent points of access between the car park area and the boardwalk will allow safe and easy access for visitors arriving by vehicle to join the pedestrian route.

These proposals maintain the ambition of the approved Outline drawings to extend the sea wall outwards to provide a safe pedestrian access to the Pier via a pedestrian boardwalk/ promenade with a lowered section taking visitors down closer to the water edge increasing interaction with the water and sense of place.

Some planting beds are formed along the promenade these are proposed to be mostly low level plants such as sea holly, low broom, samphire and non-invasive grass species giving movement in the breeze, Pinus Mugo in shrub and tree form is also proposed for height and shelter. Planting will be selected to improve the biodiversity of the area without affecting the SSSI.

Multi-use areas along the route at the Rowing Club and at the mid-point of the boardwalk allow for small events, performance art and fishing and provide opportunities to pause, look down to the beach and water’s edge below and to contemplate the views towards the pier and across the bay.

It is proposed that this promenade is further animated through the installation of sculptural elements adding interest and points of focus along the route. It is intended to work with local artists to create unique artworks which reference the location, character and history of the area. The following images illustrate some of the sort of artwork that could be incorporated into the public realm at strategic positions to animate and enhance the visitor experience.

A competition has already been announced inviting local artists to submit designs for artwork to enhance and enliven the Public Realm, but it is the intention to broaden this to encompass a wider range of ideas both temporary and permanent, which could include film, audio, recorded media, light and performance events. New entrance gates for the Pier will be commissioned, talking benches which relay the history of the area, the Mumbles Train, the history of the RNLI on the site, quotes from famous local figures, authors and films through recorded media could all contribute to an interesting, engaging and changing visitor experience. It is intended to seek the advice of the Arts Council for Wales in preparing a series of design briefs and assist with the selection of artists to ensure a rich mix of arts are represented at the Pier and foreshore.

Upon arrival at the Pier, it is proposed to extend the public realm creating terrace space for the refurbished and extended pavilion building which will continue to house the café and family entertainment area and create a new functions room to replace the under-used bowling alley at mezzanine level.

The extended public realm offers the opportunity for outdoor performance and events and exhibitions ensuring an active and lively visitor environment as well as an extended café terrace. The proposed café terrace will incorporate permanent raised planters which radiate towards the low enclosing wall to break up the space and offer shelter to diners.

The first floor terrace to the function suite which overlooks the seafront also animates this space providing an active and engaging environment.

The ground floor of the new headland development will contain cafe, bar, dining and specialist retail uses.

The existing beach access which is currently afforded by rough and uneven concrete steps will be improved as part of the public realm works to make the beach more safely and easily accessible for families with young children, more elderly and less ambulant visitors.

Works to restore the Pier have already commenced, with the new Lifeboat House and potential re-use of the existing Lifeboat House located off the main stem of the Pier will further extend the public realm and bring the historic Pier back into full use further contributing to the enhancement of this popular destination.